Perth Community Consultation Report
Racism and civil society: A community consultation held at the Aboriginal Advancement Centre, Perth WA, on 13 June 2001
Speakers:
- Dr Maria Degabriele,
Office of Citizenship and Multicultural Interests (Chair)
- Emeritus Professor
Laksiri Jayasuriya, University of Western Australia
- Dr William Jonas, Race Discrimination Commissioner and Aboriginal and Torres Strait Islander Social Justice Commissioner, HREOC
Theme 2: Victims of racism, racial discrimination, xenophobia and related intolerance.
- Government
- Complaints mechanisms
- Education
- Other measures
- Programs to challenge racism
- Racism and the Internet
- Acknowledgement and celebration
Theme 1: Sources, causes, forms and contemporary manifestations of racism, racial discrimination, xenophobia and related intolerance.
Participants agreed that racism in Australia is widespread, systematic and often subtle in its expression. They identified it as operating in both individual and structural forms in government, the private sector and a range of institutions in society. White people experience a very different Australia to that experienced by people of colour.
There are a number of different forms of racism, from blatant acts of discrimination and vilification to structural forms. Victims of racism are stigmatised, criminalised, misrepresented and blamed. They experience it as an attack on their identity and sense of self-worth.
Aboriginal people are confronted by particular forms of racism including how they are represented in the media, everyday experiences of name-calling and slander, and more subtle forms of racism such as exclusion from acknowledgement, visibility and participation in the society. Some participants said Aboriginal people are seen as the lowest level in the community, irrespective of their individual attributes or achievements. Racism has also created the self-perpetuating situation wherein Aboriginal peoples are excluded from society and its opportunities. They are then blamed for their disadvantage and the behaviour that results from it.
Aboriginal participants told of commonly enduring suspicion and surveillance when they are in shops. A non-Aboriginal participant spoke of her daughter's Aboriginal boyfriend who carries receipts for his clothing, because about once a week he is stopped by police or security guards and accused of theft.
Some participants argued that racism in Australia has become more subtle and complex with recent developments in the discourse of nationalism. With attacks on asylum seekers and a shifting of emphasis away from multiculturalism towards a 'citizenship agenda', there have emerged new "acceptable" expressions of racism at the highest levels of politics and the media. People have been schooled in how to express racism in refined ways, particularly in the definition of concepts such as race, ethnicity, culture, Aboriginal and Indigenous.
Structurally racism manifests itself in ways such as the denial of access of certain groups to services, silencing in management and policy development processes and exclusion from decision making. The voices of people who experience racism and new and emerging communities are silenced. As a result, decisions affecting them are made by others without the necessary knowledge or understanding and with the effect of further disempowering the communities concerned. People with visible difference are made most invisible by these processes.
Participants also pointed to internalised racism within communities, where migrants themselves accept racist definitions and turn against other groups such as refugees. Where government policy serves to encourage these divisions, some participants identified this as an example of migrants taking on the language of their oppressors.
Participants agreed that ignorance, fear and unwillingness to share power are three of the factors that contribute most to racism. An individual or a community can fear the supposed threat posed by another race or culture; or at the level of language it can be a fear of the unknown or fear of an inability to communicate. Overall, participants noted that we are all racist, depending where and when we feel threatened as individuals.
Racism is reproduced through families and the socialisation of children by media, government and school curricula. As we grow up we are taught to accept that the world is racialised, that dividing and excluding on the basis of race is 'natural'.
At a structural level racism is caused by (and manifested in) the ways in which decisions are made and who is permitted to make them. This is where racism is clearly tied to issues of power, an important consideration when questioning who can make the decision to change systems to address structural imbalances.
At the individual level, racism continues wherever it is not challenged by those who disagree with it. At an individual level, white people need to be confident and strong enough to challenge racism and accept the negative consequences of challenging it.
Workshop participants discussed the central role of Australia's history as a cause of racism. They spoke of the history of dispossession of the Aboriginal people by colonisation, and of discrimination against migrants which reinforces the tradition of the superiority of the 'white man'. They also noted that in recent years some migrants have imported new batches of racist attitudes. Coupled with this tradition of racist beliefs and actions is a denial of the true history of the country in politics and particularly in education. In this regard it was noted that the education curriculum is a powerful force in society and an individual must be very strong to question later in life what they have been taught in their schooling.
Some participants pointed to a fundamental misunderstanding by many people of the nature of Aboriginal culture and the association between Indigenous peoples and land. When they don't understand it, they are more likely to see land rights as a threat and to stigmatise Aboriginal people.
Government policies and the actions of politicians were seen as important causes of racism. Many participants highlighted the institutionalised racist language used by politicians playing to nationalism and racism. Participants see government and politicians as encouraging a sense of competition between groups, especially in relation to economic security which would allegedly be 'threatened' by reparation, land rights and compensation to Indigenous people or by more humane treatment extended to asylum seekers generally referred to as 'boat people'.
They noted that the intensity of the expressions of racism relies a lot on the prevailing political circumstances which bring out the hate against particular groups. For example, during the Kosovo crisis, Muslims were seen as victims of abuse and therefore treated sympathetically in the community, while more recently they have been subjected to harsher treatment as a result of the demonisation by senior politicians of 'boat people' who are predominantly Muslim.
Government funding and the provision of government services also contribute to racism. The 'mainstreaming' of services has encouraged a homogenised approach to housing, education, health, the legal system and employment, in effect, orienting services towards one particular culture. This does not reflect the multicultural and multi-racial composition of our society or take account of other forms of difference. Services are oriented to an 'Anglo' population and their delivery is often seen to be bureaucratic, not consultative, culturally inappropriate for many and not multilingual. One participant gave the example of a Somali woman applying for public housing: because she was unaware how to 'play the game' she didn't win her appeal against a negative decision and as a result still doesn't have basic safety and security in housing. In relation to funding, participants stated that the current prioritisation of government funding focuses on celebration and nationalism rather than anti-racism, overcoming disadvantage and creating equity.
There was agreement that education and the education system are important causes of racism and are one of the most important areas to be addressed in combating it.
Firstly, the curriculum needs to be improved, particularly in its teaching of Aboriginal culture and history and in teaching students to respect one another. Participants identified an absence of Aboriginal or diverse faces among the teachers and said that teachers are not prepared or competent to deal with racism in its visible or invisible forms. They believed that there is no serious accountability of teachers for their own racist behaviour.
Participants agreed that the media play a key role in creating and sustaining the stereotypes that contribute to racist attitudes. Media reports that highlight the race of other groups, particularly in the reporting of crime, reinforce underlying racism and contribute to it.
Contemporary racism in Australia is inextricably linked to the racist history of the country and we can't deal with it until we deal with that past. Racism began in Australia with "terra nullius" and the colonisation process.
We need to educate ourselves and others that the history people have been taught is a lie. Participants identified that a large part of Australia's lack of acknowledgement of Aboriginal history comes from the fact that it is so little known or understood and we could begin by addressing this national ignorance.
The Australian community needs to address the racism that has been a traditional part of the country's national identity. Some participants linked this to a need to address the invisibility of Aboriginal people, pointing out that in Perth there are no Aboriginal managers in charge of supermarkets, hotel chains, hospitals or health services. Aboriginal people are also invisible in local planning decisions and absent from the processes that make the laws and rules we live under.
Politicians should learn that on race relations they must lead rather than follow or seek to exploit divisions within the community. They need to understand racism and participate constructively in the debate over how we should address it.
On a positive note, we can also learn that 'we're all in it together' and we all need to play a part in addressing racism.
Workshops pointed to the recognition that identity and solidarity as the roots of survival are an important achievement. This recognition needs to be built on by processes to ensure that 'ethnic' and Aboriginal people take control of movements for their own defence and take part in all aspects of decision-making. One workshop identified efforts to encourage Aboriginal women in academia and leadership as a positive achievement we can build on.
However, in identifying mistakes that we need to learn from, participants were of the view that the community has yet to learn that racism is part of Australia's national identity, including people's denial of their responsibility for racism and for their own racist attitudes. The country has not acknowledged - and it needs to acknowledge - that colonialism took the land away from Aboriginal people. Reconciliation can only exist on the basis of a pre-existing relationship, and we don't yet have that between black and white people in this country.
It the political arena, there needs to be greater accountability for racist actions by government. Participants stated that politicians need to be educated about these issues, noting that politicians themselves are the product of the same education system that helps reproduce racist values. Politicians need to lead the electorate by setting a tone of equity.
There is also a need to dispel the myths and fears that contribute to racist attitudes. Politicians have mobilised fears among the non-Aboriginal community that they stand to lose materially from the demands of Aboriginal people. Black and white Australians are not competing for scarce resources and this message needs to be communicated widely.
Theme 2: Victims of racism, racial discrimination, xenophobia and related intolerance.
Aboriginal people and people of Asian backgrounds were identified by participants as the primary victims of racism.
However it was also noted that racism affects and makes victims of everyone in society, both those who suffer from it and oppressors who carry it out. As a racist society we demean ourselves and are thereby diminished. People are also manipulated by those who use racism in order to make political or other gains.
It was also recognised that people can be perpetrators and victims of racism at the same time.
Racism creates a great deal of stress for its victims, which creates health problems and affects their education and living standards. There is also the psychological cost of denial of their suffering and the silencing of the victims of racism.
Participants identified black women as a group who are doubly discriminated against. Other groups of concern include victims of racism who are also young, gay or lesbian, or disabled, particularly given the already high rates of suicide among some of these groups.
Class was identified as another factor that can compound a person's experience of discrimination.
Theme 3: Measures of prevention, education and protection aimed at the eradication of racism, racial discrimination, xenophobia and related intolerance at the national, regional and international levels.
It was noted many initiatives undertaken by government and others privilege those people who already enjoy privilege in our society. Programs to tackle racism need to take account of this fact and address these questions of access and structural inequality. Programs also need to recognise that different issues confront Indigenous peoples from those that confront others in the community: their needs are substantially different, politically, socially and economically.
Participants discussed the potential of affirmative action programs to address inequalities in areas such as employment. Some participants argued that affirmative action programs were needed and that the symbolism afforded by such programs was important. Other participants argued that affirmative action as it has been implemented in the past is inadequate, saying that affirmative action for women has replaced 'white Anglo-Saxon male domination' of society with 'white Anglo-Saxon male and female domination' of society. In particular, education and employment programs are needed that will empower Aboriginal people.
It was agreed that any programs that benefited individuals need to be coupled with measures to address problems of systemic racism. There is little use having traineeships to provide skills for Indigenous workers when their merit is not subsequently recognised and they are not given the same opportunities to progress in the system.
In discussing measures which would effectively address racism at the individual level, there was some discussion concerning whether it is possible to change people's attitudes, or whether it is necessary to concentrate on changing or regulating people's behaviours and allow that their attitudes may shift in time. Some participants argued that a person has a right to their own attitudes and values, but they do not have the right to discriminate against or hurt others on the basis of those attitudes.
Participants identified a range of specific measures that should be taken to combat racism:
Initiatives by government should begin with a national apology from the Prime Minister to Indigenous peoples in Australia, acknowledging past injustice. Governments need to fully implement previous recommendations delivered by inquiries such as the Royal Commission into Aboriginal Deaths in Custody, Bringing Them Home and reports of state inquiries. These reports produced many constructive recommendations, based on their own extensive research and consultations, which have been poorly implemented.
The Federal government should appoint a Race Discrimination Commissioner with responsibility solely for race discrimination, rather than the current practice of appointing an 'acting' Commissioner with other portfolio responsibilities.
Governments at all levels need to redirect funding to community-level initiatives such as community centres and community legal services, and direct resources to collaborative and community-based projects addressing racism. Governments also need to develop mechanisms to ensure greater accountability to the community for its anti-racism policy. Some participants noted that racism is a serious problem which won't be addressed by government promotion of orange ribbons to 'celebrate harmony'.
Programs are needed to encourage people to bring complaints of racial discrimination to bodies such as HREOC and the WA EOC. Such programs should take information to communities themselves and promote and educate people about their rights under anti-discrimination legislation and the complaints processes.
HREOC and the EOC also need to ensure their staffing profile includes people from Indigenous and culturally and linguistically diverse communities.
Participants identified education and the education system as two of the most important strategies to address racism.
There was agreement that Aboriginal history should be taught in all schools, based on a curriculum that recognises the diversity of Aboriginal populations, that reflects the cultures of local Aboriginal groups and that places the history of Aboriginal people central to the history of Australia. Some participants also recommended the compulsory teaching of comparative religion.
The curriculum should take account of how racist attitudes develop in children and should provide education that develops anti-racism and diversity awareness programs among children as young as possible, preferably as early as primary school.
These areas of the curriculum must be supported by programs to train and support teachers in the appropriate delivery of the material.
It was also noted that teaching languages other than English can be a means of equipping students with skills in relation to diversity and interpreting events through other cultural frameworks. It was thought that broadening students' range of cultural references can undermine myths and the assumption that the cultural and language constructs of Western culture and the English language are 'natural' or 'factual' parts of life.
Within the education system as a whole, there is a need for specific measures to implement the WA Education Department's anti-racism policy. Adherence to the policy needs to be mandatory and its implementation pursued at senior levels within the Department. Participants suggested that an independent board be appointed to monitor and assess its implementation.
Other proposals included:
- Anti-racism training for all police officers - particularly training that focuses on altering their behaviour and stressing that professional behaviour demands a certain standard of dealing with all members of the community;
- Enforceable codes of practice for people working in the media;
- Development of support systems for victims of racism, recognising the psychological and other consequences of discrimination.
Participants pointed to a number of programs they felt were effective in challenging and addressing racism:
- A church organisation's 2% recruitment program - programs to meet a target of ensuring at least 2% of their workforce is Aboriginal, coupled with a mentoring program for their Aboriginal staff;
- A public awareness campaign on Murdoch University campus challenging people's attitudes with the slogan "Am I a racist?";
- Reconciliation learning circles;
- The Nyoongar Night Patrol - Aboriginal people supporting Aboriginal youth on the streets and providing scrutiny for the activities of police;
- New Zealand - positive examples were seen to be enshrined in the society, with compulsory training in police and education, Maori language in schools, etc.;
- The "Blue Eyed" seminars run in the USA by Jane Elliott, challenging attitudes towards race and the assumptions of white privilege.
The Internet can be used as the basis for ongoing programs that would build on communities' existing strengths and create peer support networks online, run by the communities themselves. This could be particularly effective in bringing together young people from a diversity of backgrounds, facilitating communication and developing a global human rights perspective. The Internet was also seen as a means to allow groups to work together in coalitions and overcome the divisions and competition that government and other institutions often foster between groups.
Acknowledgement and celebration
It was agreed that the cultures of Indigenous peoples and minority groups are very poorly acknowledged. At its very basis, the society operates on one particular definition of culture, derived from Australia's white European history.
It was noted that words like 'tolerance' are very arrogant, presuming that I am in a position to tolerate you, rather than accepting my own position and the equal position of the other. Ethnicity has also come to mean "people who don't belong", rather than being used to describe the cultural heritage of any community, including the ethnicity of white people.
Indigenous culture is patronised and not seriously acknowledged by the community. When it is highlighted, this is done in an exploitative manner and it is usually done in order to make money rather than to acknowledge Indigenous contributions to the country.
Participants noted that celebrations of other cultures don't address the really hard issues relating to racism but they are still important. Therefore we need to support local and multicultural arts initiatives and to develop minimum content laws for diversity in the media to address the imbalances.
Theme 4: Provision of effective remedies, recourse, redress, [compensatory] [1] and other measures at the national, regional and international levels.
The laws dealing with racial discrimination and racial vilification are too weak and dangerously vulnerable to change. These laws also establish a process that privileges those with education and access to resources. For the victims of racism, losing a complaint carries significant and unrecognised psychological costs in the sense of frustration, anger, depression and disempowerment.
It was noted that stronger laws are needed, but as one part of a much more equitable system which addresses other needs, such as education and housing.
In considering if these laws can be improved, there was agreement that first there need to be changes made to ensure that the Racial Discrimination Act can't simply be over-ridden by a whim of Parliament. This could involve embedding guarantees against discrimination into a Bill or Charter of Rights.
We also need tougher sanctions against racial vilification if we are to affect behaviour, and to significantly increase penalties for racial hatred and discrimination. Some participants argued that criminal sanctions need to be introduced into Federal legislation for acts of racial hatred. Bodies such as HREOC should be given powers to initiate investigations into instances of alleged racial discrimination.
Laws are needed both to express and enforce the fundamental values opposing racism. If they are functioning effectively they should contribute to all three aims: preventing racism, punishing it when it occurs and providing the basis for public education concerning the unacceptability of racial discrimination in the community.
Other measures to ensure effective remedies
It was agreed that more attention should be given to development of local measures to address local expressions of racism and to address issues facing victims of racism.
1. That the WA Government promote the participation of young WA people in the UN WCAR by providing funding for delegates and resources for youth consultations run by young people.
2. That outstanding recommendations from reports and relevant agencies such as Bringing Them Home and the Royal Commission into Aboriginal Deaths in Custody be implemented and regularly reviewed and evaluated to monitor change.
3. That Aboriginal history courses, developed and delivered by Aboriginal Studies Departments, be compulsory units undertaken by all tertiary education students within the university and TAFE systems.
4. That bilingual and multicultural schools be adequately resourced and funded by DETYA.
5. That peer support and mentoring programs for young people from Indigenous and culturally and linguistically diverse backgrounds be developed, in consultation with youth and their communities, and implemented and adequately funded in schools.
6. That mandatory sentencing laws in WA and the Northern Territory be repealed and the legal and criminal justice systems focus on education and rehabilitation of young people rather than punishment.
7. That the principles of the Racial Discrimination Act be enshrined in the Constitution, and that the "race" power be removed from the Constitution.
8. That mandatory detention of refugees be repealed and replaced by a model of integrating and supporting refugees in the community, such as in Sweden.
9. That the State Government implement its anti-racism policy in the education system and develop a mechanism for the effective monitoring and evaluation of the policy.
10. That government, non-government organisations and community groups fund, resource and promote programs for young people from Indigenous and culturally and linguistically diverse backgrounds to develop skills in leadership, public speaking and the media/Internet. That more opportunities be created for young people from diverse backgrounds to participate confidently, effectively and equitably in decision-making and the community. Further, that these programs be developed in consultation with young people and Indigenous and ethnic communities.
11. That the government abandon the policy of mainstreaming services (operating on one model of culture) and develop policies that are inclusive, providing adequate and appropriate services for all members of the community.
12. Given the intersections of identity and oppression, that more dialogue and partnerships between Indigenous, ethnic, refugee, youth, gay and lesbian, women and disability groups be established.
13. That the government fund HREOC to undertake consultations and awareness-raising on issues relating to a Bill of Rights and a Treaty between Indigenous and non-Indigenous Australians.
14. That research, programs and services be developed to address intergenerational conflict within Indigenous and ethnic communities.
15. That the government increase funding to community-based Indigenous and ethnic organisations.
16. That the Federal government increase the number of family reunion places under the migration program.
1. Note: The word compensatory was in brackets as there was no consensus among governments to include it under this theme.
